JOINT PROGRAMME 6.1 – TRANSITION FROM HUMANITARIAN ASSISTANCE TO SUSTAINABLE DEVELOPMENT End-of-Programme Evaluation Final Report submitted to UNDP Tanzania by Lovemore M. Zinyama and Slaus Mwisomba July 2011 CONTENTS page ACRONYMS iii EXECUTIVE SUMMARY v 1.0 INTRODUCTION 1 1.1 Background to the Joint Programme 6.1 1 1.2 Expected Results of the Joint Programme 6.1 1 1.3 UN Delivering as One (DaO) 3 1.4 Purpose of the Evaluation 4 1.5 Structure of the Report 5 2.0 EVALUATION METHODOLOGY 6 2.1 Introduction 6 2.2 Review of Documents 6 2.3 Evaluation Work Plan 6 2.4 Development of Data Collection Tools 7 2.5 Interviews with Key Informants 8 2.6 Field Visits to Activity Sites 8 2.7 Focus Group Discussions with Community Leaders and Beneficiaries 9 2.8 Limitations of the Evaluation 9 3.0 KEY OUTPUTS OF THE JOINT PROGRAMME 6.1 11 3.1 Introduction 11 3.2 Key Outputs of the Joint Programme 6.1 11 3.2.1 Education 11 3.2.2 Health 14 3.2.3 Land Use Planning 16 3.2.4 Capacity Development in the LGAs 17 3.2.5 Child Protection 18 3.2.6 Water, Sanitation and Hygiene (WASH) 18 3.2.7 Border and Migration Controls 19 3.3 Where was the JP 6.1 Less Successful? 20 4.0 PROGRAMME RELEVANCE, EFFICIENCY, IMPACTS, SUSTAINABILITY AND PARTNERSHIPS 21 4.1 Introduction 21 4.2 Relevance of the JP 6.1 21 4.3 Programme Efficiency and Effectiveness 23 4.4 Programme Outcomes/Impacts 26 4.4.1 Programme Impacts on the Quality of Health Services 26 4.4.2 Programme Impacts on the Quality of Education 27 4.4.3 Programme Impacts on WASH 28 4.4.4 Protection of Vulnerable Groups 29 4.4.5 Programme Impacts on LGA Capacity for Planning, M&E and Gender Mainstreaming 30 4.4.6 Programme Impacts on Migration Procedures and Controls 31 4.5 Sustainability of Programme Outputs and Outcomes 32 i 4.6 Partnerships and Coordination 34 4.6.1 National and Regional Level Coordination 34 4.6.2 One UN Joint Team 34 4.6.3 Cluster Working Groups 36 4.6.4 District and Regional Level Coordination 37 4.6.5 Overall Assessment of DaO under the JP 6.1 37 4.7 Cross-cutting Issues 38 5.0 CONCLUSION, LESSONS LEARNED AND RECOMMENDATIONS 42 5.1 Conclusion 42 5.2 Lessons Learned 42 5.3 Recommendations 43 5.3.1 Recommendation for the GoT 44 5.3.2 Recommendations for the UN in Tanzania 44 APPENDICES 1: Terms of Reference 46 2: Work Plan 55 3: Evaluation Matrix 58 4: Persons Interviewed 64 5. Key Outputs of the Joint Programme 6.1, by District and Cluster 67 TABLES 1: JP 6.1 objectives and key results 2 2: JP 6.1 coordination meetings of the One UN Joint Team held in Kigoma 35 TEXT BOXES 1: Who is the beneficiary? - Mkugwa Girls High School, Kibondo District 22 2: Programme relevance - Lugufu Girls Secondary School, Kigoma District 23 3: Programme efficiency – “Delivering as One” requires commitment, inter-agency communication and coordination 25 4: Programme impact - land use planning in Nyakaiga Village, Karagwe District 31 5: Sustainability of programme outputs - challenges of implementing the new primary school curriculum 33 ii ACRONYMS ACSEE Advanced Certificate of Secondary Education Examination AIDS Acquired Immuno-Deficiency Syndrome CCRO Certificate of Customary Right of Occupancy CFSVA Comprehensive Food Security and Vulnerability Analysis CHMT Council Health Management Team CVL Certificate of Village Land DaO Delivering as One DC District Commissioner DED District Executive Director DHMT District Health Management Team DRC Democratic Republic of Congo EIA Environmental Impact Assessment EPI Expanded Programme on Immunization FACE Fund Authorisation and Certification of Expenditure FAO Food and Agriculture Organisation of the United Nations FDC Folk Development College GoT Government of Tanzania HIV Human Immuno-deficiency Virus HMIS Health Management Information System HRBA Human Rights Based Approach ILO International Labour Organisation IMCI Integrated Management of Childhood Illnesses IOM International Organisation for Migration IP Implementing Partner JP Joint Programme JSC Joint Steering Committee LED Local Economic Development LGA Local Government Authority LGRP Local Government Reform Programme MA Managing Agent M&E Monitoring and Evaluation MCH Maternal and Child Health MDA Ministry, Department, Agency MDG Millennium Development Goal MoU Memorandum of Understanding MTEF Medium Term Expenditure Framework MVC Most Vulnerable Children NPA Norwegian People’s Aid NSGRP National Strategy for Growth and Reduction of Poverty (MKUKUTA) NWT Northwestern Tanzania OPD Outpatients Department PHC Primary Health Care PITC Provider-Initiated HIV Testing and Counselling PMTCT Prevention of Mother-to-Child Transmission of HIV PMO-RALG Prime Minister’s Office – Regional Administration & Local Government PUN Participating UN agency RAS Regional Administrative Secretary RBM Results based management iii RC Regional Commissioner RHMT Regional Health Management Team SIDO Small Industries Development Organisation TOR Terms of Reference TOT Training of Trainers TTC Teacher Training College UN United Nations UNCDF United Nations Capital Development Fund UNDAF United Nations Development Assistance Framework (2007-2010) UNDAP United Nations Development Assistance Plan (July 2011 – June 2015) UNDP United Nations Development Programme UNEP United Nations Environment Programme UNESCO United Nations Educational, Scientific and Cultural Organisation UNHCR United Nations High Commission for Refugees UNICEF United Nations Children’s Fund UNIDO United Nations Industrial Development Organisation VTC Vocational Training Centre WASH Water, sanitation and hygiene WFP World Food Programme WHO World Health Organisation iv EXECUTIVE SUMMARY 1. Background to the Joint Programme 6.1 Northwestern Tanzania (NWT) has historically hosted refugees from Burundi, Rwanda and the DRC fleeing from internal conflicts in their countries from as early as 1972. Their number peaked during the mid-1990s when there were over 500,000 refugees in 13 camps spread across the two regions of Kigoma and Kagera. The large-scale humanitarian operation, established in response to the massive refugee influxes, has had an impact on the social and economic development of the area. As the withdrawal of humanitarian support would have considerable repercussions and consequences on the local economy of the districts that hosted the refugee camps, a joint UN programme which aimed at supporting the Regional and Local Government Authorities to address the transition from the humanitarian aid environment to sustainable development was developed during 2007-2008. It had been planned to start in July 2008, but actual implementation only started in January 2009. The Joint Programme 6.1 was implemented in the five districts of Kigoma, Kasulu, Kibondo (in Kigoma Region), Ngara and Karagwe (in Kagera Region). In addition to district- specific activities, the programme also provided capacity development support at the district and regional levels in both Kigoma and Kagera Regions. The three-year programme ended on 30 June 2011. The JP 6.1 was organised around three thematic clusters which were aligned to the Government of Tanzania (GoT)’s development goals as defined in its National Strategy for Growth and Reduction of Poverty (MKUKUTA, the KiSwahili acronym). The strategy identifies three major clusters, viz (i) growth and reduction of income poverty; (ii) improvement in the quality of life and social well-being, and (iii) good governance. An internal division of labour provided for selected Participating UN agencies (PUNs) to coordinate activities within these clusters in line with their areas of technical expertise. The selected cluster lead agency was responsible for consolidating cluster work plans, progress reports, and requests for funds, in collaboration with other PUNs and Implementing Partners (IPs) in the cluster that it was coordinating. As the three-year programme was coming to an end, UNDP, as the Managing Agent, contracted two independent external consultants to conduct an end-of-programme evaluation of the JP 6.1. 2. Purpose of the Evaluation The purpose of the evaluation was to assess the achievements (outputs and outcomes) of the Joint Programme 6.1 in Northwestern Tanzania since its commencement. More specifically, the evaluation aimed to: (i) assess the appropriateness, relevance, effectiveness, efficiency, impact and sustainability of the JP 6.1 outputs and achievements; and (ii) identify lessons learned and draw conclusions which could inform other interventions and which could contribute to decision making processes of the UN, Government of Tanzania (GoT) and other development partners. v 3. Evaluation Methodology The evaluation was conducted during the months of May and June 2011. A multi- pronged approach was used for information gathering, including Reviewing key programme documents; Development of data collection tools (evaluation matrix, interview guides and focus group discussion guides); Conducting interviews with key informants in the PUNs and the participating LGAs and MDAs, both in Dar es Salaam and in the two regions of Kigoma and Kigera; Conducting focus group discussions with community leaders and beneficiaries in the five districts; and Field visits to some of the activity sites in all five districts. 4. Key Outputs of the Joint Programme 6.1 Despite problems and delays experienced at the beginning, the programme has produced remarkable outputs that are already benefiting the communities and local authorities in the two regions. The major outputs of the programme are summarised in the following paragraphs. Outputs for Enhancing the Quality of Education: Construction of new buildings and rehabilitation of existing structures at the former refugee camps and their conversion into five new secondary schools, together with support facilities such as water, solar power, latrines, dormitories, dining rooms, kitchens and staff houses. The schools have also been provided with libraries, laboratories and science kits. Three of the schools were already operational at the time of the evaluation while the other two were expected to enrol students in time for the 2011-2012 school year.